D O C U M E N T IS T H E P R O P E R T Y O F H E R B R I T A N N I C M A J E S T Y ' S G O V E R N M E N T
CP(73) 92
COPY NO
g'f
2 0 S e p t e m b e r 1973
CABINET
R E S P O N S E T O T H E R E P O R T ON P O L I C E / I M M I G R A N T R E L A T I O N S BY THE S E L E C T C O M M I T T E E ON R A C E R E L A T I O N S A N D IMMIGRATION: D R A F T WHITE P A P E R N o t e b y t h e S e c r e t a r y of S t a t e f o r t h e H o m e D e p a r t m e n t I a t t a c h f o r t h e i n f o r m a t i o n of m y c o l l e a g u e s t h e t e x t o f a W h i t e P a p e r , f o r
p u b l i c a t i o n on 10 O c t o b e r , i n r e s p o n s e t o t h e R e p o r t o n P o l i c e / I m m i g r a n t
R e l a t i o n s p u b l i s h e d l a s t S e p t e m b e r b y t h e S e l e c t C o m m i t t e e on R a c e
R e l a t i o n s and I m m i g r a t i o n .
The t e x t has b e e n a g r e e d in draft by the
H o m e and S o c i a l A f f a i r s C o m m i t t e e .
R C
Home
Office
20 S e p t e m b e r 1973
DRAFT WHITE PAPER POLICE/EMIGRANT RELATIONS IN ENGLAND AND WALES
OBSERVATIONS ON THE REPORT OP THE SELECT
COMMITTEE ON RACE RELATIONS AND IMMIGRATION
1.
The need t o f o s t e r good r e l a t i o n s b e t w e e n the. p o l i c e and t h e
immigrant communities i s a m a t t e r o f g r e a t i m p o r t a n c e t o a l l who
w i s h t o s e e a j u s t and harmonious s o c i e t y i n B r i t a i n : i t i s n o t a
matter of concern t o the p o l i c e a l o n e .
The Government
therefore
welcome t h e S e l e c t C o m m i t t e e ' s r e p o r t , w h i c h c o n s t i t u t e s a n o t a b l e
and c o n s t r u c t i v e c o n t r i b u t i o n t o d i s c u s s i o n o f a t o p i c w h i c h ,
r e g r e t t a b l y , t e n d s t o g i v e r i s e t o more e m o t i o n t h a n i l l u m i n a t i o n .
Apart from t h e r e p o r t i t s e l f ,
t h e volumes of e v i d e n c e c o n t a i n a
u n i q u e c o l l e c t i o n of v i e w s and a t t i t u d e s from a w i d e v a r i e t y o f
sources.
I n t h i s f i e l d , what p e o p l e b e l i e v e t o be t h e t r u t h may
be as important a s the t r u t h i t s e l f .
Prejudice,
a s t h e Committee
o b s e r v e , f e e d s on myth and rumour, w h e t h e r i t be a g a i n s t i m m i g r a n t s
o r on t h e p a r t o f
2,
immigrants.
The a r r i v a l o v e r t h e l a s t c o u p l e o f d e c a d e s o f
significant
numbers o f i m m i g r a n t s s e t t l i n g i n t h i s c o u n t r y h a s c o n f r o n t e d t h e
police,
a s i t has o t h e r b o d i e s , w i t h a n o v e l s i t u a t i o n .
a r e t h e f i r s t t o admit t h a t d i f f i c u l t i e s
of t e n s i o n continue to e x i s t .
The p o l i c e
have a r i s e n and t h a t a r e a s
The S e l e o t C o m m i t t e e ' s r e p o r t makes
i t c l e a r , however, t h a t i n many r e s p e c t s t h e c h a l l e n g e i s
being
s u c c e s s f u l l y met.
endorse
The Government a r e g l a d to n o t e and t o
t h e t r i b u t e s p a i d by t h e Committee t o what t h e p o l i c e s e r v i c e h a s
achieved.
The Government w i l l a l s o make renewed e f f o r t s
1
to
tackle
c
L
t h e p r o b l e m s i n t h o s e a r e a s where the-Committee have p o i n t e d t o
persisting difficulties.
The Gommitteeis r e p o r t has b e e n
c a r e f u l l y s t u d i e d i n t h e p o l i c e s e r v i c e , and a c c o u n t i s
already
b e i n g t a k e n o f t h e C o m m i t t e e ^ recommendations i n t h e p l a n n i n g o f
future p o l i c e
3.
activity.
The r e p o r t r i g h t l y s t r e s s e s t h a t immigrants a r e n o t i n
t h e m s e l v e s a problem t o t h e p o l i c e .
There i s a b s o l u t e l y no
e v i d e n c e t o s u p p o r t s u g g e s t i o n s t h a t t h e g r e a t m a j o r i t y o f immi­
grants are anything other than hard-working, l a w - a b i d i n g c i t i z e n s .
*
One s o u r c e o f d i f f i c u l t y h a s i n e v i t a b l y been t h e u n f a m i l i a r i t y t o
newcomers o f - t h e ways o f t h i s c o u n t r y and i t s
institutions.
M i s u n d e r s t a n d i n g s a r i s e t h r o u g h m i s c o n c e p t i o n s about t h e
position
o f t h e p o l i c e h e r e - about t h e e x t e n t o f t h e i r d u t i e s and t h e
l i m i t a t i o n s on t h e i r p o w e r s ; and e q u a l l y , on t h e p o l i c e
misunderstandings a r i s e through d i f f i c u l t i e s
side,
o f communication, w i t h
new i m m i g r a n t s .
if.
E x p e r i e n c e and u n d e r s t a n d i n g a c q u i r e d w i t h t h e p a s s a g e o f t i m e
w i l l h e l p overcome t h e s e d i f f i c u l t i e s .
The p o l i c e p r i d e
themselves
on t h e i r r e c o r d o f i m p a r t i a l i t y t o w a r d s a l l s e c t i o n s o f t h e
community r e g a r d l e s s o f d i s t i n c t i o n s o f background, and w o u l d
r i g h t l y r e s i s t any s u g g e s t i o n t h a t t h e r e s h o u l d be s p e c i a l
for immigrants.
treatment
T h i s i s n o t t o s a y , however, t h a t t h e p o l i c e can
afford t o ignore the s p e c i a l circumstances of d i f f e r e n t
T h i s a p p l i e s t h r o u g h o u t s o c i e t y and n o t j u s t t o p o l i c e
w i t h immigrant g r o u p s .
groups.
relations
There i s an i n c r e a s i n g r e c o g n i t i o n o f
the
need f o r p o l i c e m e n t o have a s o p h i s t i c a t e d g r a s p o f t h e n a t u r e o f
2
modern s o c i e t y .
I t i s n o t enough - and no d o u b t n e v e r w a s -
t h e p o l i c e m e r e l y t o know and e n f o r c e t h e l a w .
for
They need an a d e q u a t e
understanding of the a s p i r a t i o n s a n d ' f r u s t r a t i o n s of the
different
s e c t i o n s o f t h e community i n w h i c h t h e y move i f t h e y a r e t o estab!lish
t h e mutual t r u s t , on which s u c c e s s f u l p o l i c i n g d e p e n d s .
Immigration
h a s been an i m p o r t a n t phenomenon i n r e c e n t y e a r s and s p e c i a l
a t t e n t i o n has t o b e g i v e n b y t b e p o l i c e t o i t s c o n s e q u e n c e s .
Such
measures a s t h e a p p o i n l m e n t o f p o l i c e community l i a i s o n o f f i c e r s
to
1
promote u n d e r s t a n d i n g and e s t a b l i s h l i n k s w i t h t h e immigrant
communities a r e e x a m p l e s o f t h i s .
They i n no way i m p l y t h a t
immigrants are s i n g l e d out for s p e c i a l l y favourable t r e a t m e n t :
they
a r e no more t h a n a r e c o g n i t i o n t h a t p o l i c e / i m m i g r a n t r e l a t i o n s
are
a m a t t e r on w h i c h s p e c i f i c
5.
attentibhcisJnecessary.
Heavy demands are made o f t h e p o l i c e i n t h e modern w o r l d , and
t h e Committee r i g h t l y s t r e s s t h a t t h e y c a n n o t b e e x p e c t e d t o c a r r y
t h e s e r e s p o n s i b i l i t i e s without adequate t r a i n i n g .
Increasing
a t t e n t i o n i s now d e v o t e d t o b r o a d e n i n g t h e c o n t e n t o f t h e
training
g i v e n t o t h e p o l i c e and t h e r e s t r u c t u r i n g o f c o u r s e s h a s t a k e n
a c c o u n t o f t h e need t o i n c l u d e a d e q u a t e time f o r
police/immigrant
relations.
6.
The p o l i c e n e e d an u n d e r s t a n d i n g o f t h e backgrounds o f
the
d i f f e r e n t i m m i g r a n t communities and t h e f a c t o r s i n v o l v e d i n
immigration.
They n e e d an u n d e r s t a n d i n g ^ t o o , o f t h e s i t u a t i o n
in
w h i c h i m m i g r a n t s f i n d t h e m s e l v e s i n t h i s c o u n t r y - t h e economic a i d
s o c i a l f a c t o r s w h i c h have l e d t o immigrant c o n c e n t r a t i o n i n i n n e r
c i t y a r e a s w i t h t h e i r problems o f s o c i a l d e p r i v a t i o n .
The problems
o f t h e s e a r e a s l i e r i g h t o u t s i d e t h e power of t h e p o l i c e t o
but i n e v i t a b l y ,
affect
as v i s i b l e r e p r e s e n t a t i v e s of a u t h o r i t y , t h ey find
t h e m s e l v e s h e l d i n some s e n s e r e s p o n s i b l e .
7.
Problems such a s bad h o u s i n g and l a c k o f l e i s u r e
a r e problems w h i c h government, l o c a l and c e n t r a l ,
facilities
and s o c i e t y a t
l a r g e , have t o t a c k l e , b u t t h e y form an i m p o r t a n t e l e m e n t i n the
c o n t e x t i n w h i c h t h e p o l i c e have t o work.
The Government r e c o g n i s e :
0 this.
S o c i a l improvements b e n e f i t p o l i c e work, w h i l e
p e r s i s t e n c e o f i n t r a c t a b l e s o c i a l problems c r e a t e s
the
difficulties
w h i c h t h e p o l i c e a r e p o w e r l e s s t o s o l v e b y t h e i r own e f f o r t s .
8.
I t would be i d l e and d a n g e r o u s t o p r e t e n d t h a t
b e t w e e n p o l i c e and immigrants c r e a t e d i f f i c u l t i e s
relations
only for
immigrants who a r e new t o t h i s c o u n t r y and t h a t t i m e w i l l
s o l v e a l l the problems. D i f f i c u l t i e s
those
necessarily
a r i s e w i t h young c o l o u r e d p e o p l e
p a r t i c u l a r , and many o f t h e s e were, born h e r e o r came h e r e a s
c h i l d r e n and h a v e s p e n t t h e i r f o r m a t i v e y e a r s h e r e .
s e c o n d g e n e r a t i o n , who a r e n o t immigrants a t a l l ,
difficulties,
These,
in
small
the
have t h e i r own
growing up i n two c u l t u r e s , t h a t o f t h e i r p a r e n t s
and t h a t o f t h e l a r g e r s o c i e t y around them.
But a s B r i t i s h born
and b r e d t h e y r i g h t l y e x p e c t t o be a c c e p t e d on t h e same terms a s
o t h e r s r e g a r d l e s s o f colour-.
T h i s i s a c h a l l e n g e t o s o c i e t y as a w h o l e
and we cannot y e t c l a i m t h a t we a r e m e e t i n g i t a s w e l l a s we s h o u l d . The
p o l i c e a r e of c o u r s e o n l y one e l e m e n t o f t h e s o c i e t y w h i c h
c o n f r o n t e d by t h i s c h a l l e n g e .
is
W h i l e p a r t o f t h e tfcst i s t h e
extent
t o which c o l o u r e d p e o p l e a r e t r e a t e d by t h e p o l i c e on t h e same
terms as w h i t e
p e o p l e , any f a i l u r e o f t h e r e s t o f s o c i e t y ,
4
in
employment, i n h o u s i n g and e l s e w h e r e , t o a o c e p t c o l o u r e d
citizens
on e q u a l terms w o u l d undermine t h e e f f o r t s made b y t h e p o l i c e and
l e a v e them f a c i n g forms o f d i s c o n t e n t w h i c h s p r i n g fcorn c a u s e s
outside their
9.
control.
I t i s w o r t h remembering t h a t the p o l i c e have o v e r t h e
years
had d i f f i c u l t i e s w i t h d i f f e r e n t groups o f young p e o p l e - who have
o f t e n b e e n e a s i l y i d e n t i f i a b l e by d r e s s or appearance and whose
c o l l e c t i v e behaviour has g i v e n cause f o r o f f e n c e to the p u b l i c
large.
Only a s m a l l m i n o r i t y o f young c o l o u r e d r e o p l e a r e
by t h i s c o n f r o n t a t i o n w i t h the p o l i c e .
Some g r o u p s ,
at
affected
apparently
a n x i o u s t o i m i t a t e b e h a v i o u r amongst t h e b l a c k community i n the
U n i t e d S t a t e s ^ t h e m s e l v e s provoke t h e d i f f i c u l t i e s .
It is
important
t o ensure t h a t the problems c r e a t e d for the p o l i c e i n d e a l i n g w i t h
groups :-of t h i s s o r t do n o t a f f e c t p o l i c e a t t i t u d e s t o t h e m a j o r i t y
of, l a w - a b i d i n g c o l o u r e d y o u n g s t e r s .
10.
I t i s q u i t e c l e a r f r o m . t h e e v i d e n c e g a t h e r e d by t h e
Select
Committee t h a t g r e a t e f f o r t s a r e b e i n g m a d e . b o t h b y t h e p o l i c e
b y t h e immigrant communities t o improve mutual
understending.
The Government welcome and s u p p o r t t h e s e e f f o r t s .
h e a r t e n i n g t o n o t e t h a t t h e y a l s o have t h e f u l l
It is
particularly
support of
P o l i c e F e d e r a t i o n , w h i c h h a s i t s e l f t a k e n a number o f
initiatives in this fielS.
and
the
valuable
The r e p o r t r i g h t l y e m p h a s i s e s
that
t h e r e c a n be no q u i c k or e a s y s o l u t i o n t o a l l p r o b l e m s , t h a t
only
c o n s t a n t c o n s t r u c t i v e e f f o r t on Lboth s i d e s can s u c c e e d .
Bad news
w i l l : - , c a t c h h e a d l i n e s end become e x a g g e r a t e d ,
all
good hews i s
o f t e n i n c o n s p i c u o u s and o n l y b r o u g h t o u t i n t o t h e open by
too
i n v e s t i g a t i o n s u c h as t h a t c a r r i e d o u t by t h e S e l e c t Committee,
The p o l i c e h a v e a l o n g t r a d i t i o n o f i n v o l v e m e n t i n t h e a f f a i r s
t h e community, b o t h on and o f f d u t y , '
It is this
of
involvement,
o u t s i d e t h e immediate s t r e s s e s and f r i c t i o n s o f law e n f o r c e m e n t ,
w h i c h f o s t e r s u n d e r s t a n d i n g and c o n f i d e n c e b e t w e e n t h e l o c a l
and t h e i r community.
police
I t i s i n d i s p e n s a b l e t o a t t e m p t s t o improve
poliee/immigrant relations.
I t would n o t be r i g h t , h o w e v e r , t o g i v e
t h e i m p r e s s i d n t h a t t h e onus r e s t s o n l y on one s i d e .
The S e l e c t
Committee l e a v e no doubt about t h e n e e d f o r immigrants
themselves
t o make t h e i r c o n t r i b u t i o n , a s i n d e e d a g r e a t many d o ,
11,
1
The G-overnment s v i e w s on t h e recommendations i n Chapter 15
o f t h e r e p o r t a r e s e t o u t i n t h e Annex,
ANNEX OBSERVATIONS ON THE RECOMMENDATIONS OP THE SELECT COMMITTEE
The recommendations made by t h e S e l e c t Committee are s e t o u t i n p a r a g r a p h
343 i n C h a p t e r 15 o f i t s r e p o r t .
:.; v. v
They a r e r e p r o d u c e d below w i t h comment
jr.
on e a c h .
(l)
"The f a c t s a b o u t immigrant crime r a t e s s h o u l d be b r o u g h t
firmly
t o t h e a t t e n t i o n o f a l l p o l i c e o f f i c e r s " ( p a r a g r a p h 243) *
Comment - The Government have n o t e d w i t h i n t e r e s t t h e e v i d e n c e from s e v e r a l
p o l i c e s o u r c e s g i v e n t o t h e Se3.ect Committee t h a t crime r a t e s i n t h e
immigrant community a r e no h i g h e r t h a n , and i n some c a s e s
significantly
l o w e r t h a n , t h o s e f o r t h e i n d i g e n o u s p o p u l a t i o n and w i l l draw i t t o
a t t e n t i o n o f c h i e f o f f i c e r s of
police.
the
(2)
"Local a u t h o r i t i e s s h o u l d be u r g e d t o make u s e of s t a t u t o r y powers
t o a s s i s t i n t h e c o n s t r u c t i o n o f l i c e n s e d c l u b s and community
facilities"
( p a r a g r a p h 21+6).
(3)
"Pending p o s s i b l e changed i n . t h e l i c e n s i n g l a w s , p r e s e n t
police
p o l i c y o f " c o n t a i n m e n t " o f s h e b e e n s s h o u l d be c o n t i n u e d " ( p a r a g r a p h 2 4 6 ) .
Comment
- There i s n o . e v i d e n c e t h a t l o c a l a u t h o r i t i e s a r e r e l u c t a n t ,
a p p r o p r i a t e c i r c u m s t a n c e s , t o u s e t h e i r powers t o a s s i s t i n t h e
o f c l u b s and community f a c i l i t i e s .
in
construction
Licensing of such f a c i l i t i e s
is a
m a t t e r f o r l o c a l m a g i s t r a t e s ' c o u r t s o r l i c e n s i n g j u s t i c e s , who w i l l
normally take l o c a l circumstances i n t o account i n d e a l i n g w i t h
applications.
I t i s n o t c l e a r , h o w e v e r , t h a t an i n c r e a s e i n t h e p r o v i s i o n o f
licehsed
p r e m i s e s would s i g n i f i c a n t l y e a s e t h e p r o b l e m s p r e s e n t e d b y " s h e b e e n s " .
The a t t r a c t i o n o f " s h e b e e n s " o r any o t h e r p a r t y h e l d on p r i v a t e p r e m i s e s
would appear to l i e l a r g e l y i n the f a c i l i t i e s t h e y o f f e r w e l l i n t o t h e
n i g h t and e a r l y h o u r s o f t h e m o r n i n g , a s paragraph 245 o f t h e C o m m i t t e e ' s
report recognises.
I t would seem d o u b t f u l w h e t h e r a c l u b w i t h a
c o n v e n t i o n a l d r i n k i n g l i c e n c e and r u l e s about n o i s e , music and e n t e r t a i n m e n t
w o u l d be s e e n a s an a t t r a c t i v e
alternative.
The e n f o r c e m e n t o f t h e e x i s t i n g law i s a m a t t e r f o r t h e c h i e f
officer
of p o l i c e
concerned.
(4)
"Lost o r m u t i l a t e d p a s s p o r t s a r e t o o e a s i l y r e p l a c e d .
The i s s u e
of
r e p l a c e m e n t p a s s p o r t s s h o u l d be d i s c u s s e d b e t w e e n t h e F o r e i g n and Commonwealth
Office,
t h e Home O f f i c e and t h e H i g h Commissions i n London" ( p a r a g r a p h 2 4 8 )
Comment -
0
The Government a r e v e r y w e l l . a w a r e o f t h e p o t e n t i a l e v a s i o n o f
immigration c o n t r o l which t h i s p r a c t i c e can f o s t e r .
But t h e c o n s u l a r
function
of i s s u i n g p a s s p o r t s r e f e r r e d t o i n A r t i c l e 5* p a r a g r a p h ( d ) o f t h e V i e n n a
Convention on C o n s u l a r R e l a t i o n s 1963 i s n o t s u b j e c t t o any r e s t r i c t i o n ,
and
t h e r e p r e s e n t a t i v e s o f f o r e i g n and Commonwealth Governments i n t h e U n i t e d
Kingdom a r e n o t under any d u t y t o t h e h o s t Government t o r e f r a i n from i s s u i n g
p a a s p o r t s i n c e r t a i n c i r c u m s t a n c e s , or t o c o n s u l t t h a t Government b e f o r e
so f o r f e a r o f i n h i b i t i n g i t s a d m i n i s t r a t i o n o f t h e i m m i g r a t i o n l a w s .
doing
We f o r
our p a r t w o u l d not; w i s h our m i s s i o n s and c o n s u l a t e s t o be under any s u c h
obligation
F u r t h e r m o r e , p o s s e s s i o n o f a p a s s p o r t i s s u e d i n t h i s c o u n t r y does n o t
a b s o l v e a p e r s o n a d m i t t e d on c o n d i t i o n s from t h e n e e d t o comply w i t h t h o s e
c o n d i t i o n s , n o r does i t make him immune from p r o s e c u t i o n f o r b r e a c h o f them
or make a p e r s o n who h a s e n t e r e d i l l e g a l l y immune from p r o s e c u t i o n f o r
that
o f f e n c e o r immune from r e m o v a l .
The Home O f f i c e and t h e F o r e i g n and Commonwealth O f f i c e h a v e
t h i s p r o b l e m w i t h t h e Diplomatic' M i s s i o n s i n London o f . - t h e c o u n t r i e s
discussed
concerned,
and t h e y w i l l c o n t i n u e t h e i r e f f o r t s t o s e e w h e t h e r t h e r i s k o f e v a s i o n o f
c o n t r o l c a n be r e d u c e d o
(£)
"The p o l i c e s h o u l d g e t f u l l e r and q u i c k e r i n f o r m a t i o n a b o u t p e r s o n s
overstaying t h e i r entitlement"
(paragraph
2hS),
Comment - The Government a c c e p t t h a t c a s e s c a l l i n g f o r p o l i c e
investigation
s h o u l d b e b r o u g h t t o t h e a t t e n t i o n o f the p o l i c e p r o m p t l y when d e p a r t m e n t a l
e n q u i r i e s have f a i l e d .
be s p e e d e d up-
The p r o c e d u r e i s b e i n g r e v i e w e d t o s e e w h e t h e r ' . i t - - c a n
When a p e r s o n i s known t o b e i n b r e a c h o f t h e
governing his stay,
conditions
e n q u i r i e s a r e u s u a l l y made b y t h e Home O f f i c e a t
the
a d d r e s s l a s t known t o them and s^ubsequantly a t o t h e r a d d r e s s e s w h i c h t h e s e
e n q u i r i e s may s u g g e s t .
I n some c a s e s e n q u i r i e s a r e made o v e r s e a s b e f o r e t h e .
p o l i c e are asked to t r y to t r a c e the person.
Many c a s e s a r e c l e a r e d up
5
by t h e s e d e p a r t m e n t a l e n q u i r i e s w i t h o u t t h e p o l i c e h a v i n g t o b e t r o u b l e d .
(6)
"A r e q u i r e m e n t s h o u l d be p l a c e d on r e l a t i v e s i n t h i s c o u n t r y t o a c t
g u a r a n t o r s f o r p e r s o n s coming f o r a r e s t r i c t e d s t a y a t t h e i r i n v i t a t i o n ,
t h a t an e f f e c t i v e
s y s t e m o f s a n c t i o n s c a n be d e v i s e d t o p r e v e n t abuse"
as
provided
(paragraph
.2U9).
Comment - The Government hove c a r e f u l l y c o n s i d e r e d t h e s u g g e s t i o n t h a t
relatives
s h o u l d be r e q u i r e d t o a c t a s g u a r a n t o r s f o r p e o p l e coming a t t h e i r i n v i t a t i o n
for
a l i m i t e d s t a y i n t h e U n i t e d Kingdom. But a g u a r a n t e e o f t h i s k i n d w o u l d b e l i k e l y
t o be o f l i t t l e v a l u e ;
e x p e r i e n c e h a s shown t h a t a r e l a t i v e c a n n o t e n s u r e
t h a t h e i s k e p t i n f o r m e d o f t h e movements o f a p e r s o n he i s s p o n s o r i n g .
Such a n
u n d e r t a k i n g , e v e n when e n t e r e d i n t o i n good f a i t h , would b e most d i f f i c u l t ,
n o t i m p o s s i b l e , f o r t h e s p o n s o r t o honour and f o r t h e Home O f f i c e t o
INnUhNTlAL if
enforce-
( 7 ) " "The Home O f f i c e , t h e Department o f H e a l t h and S o c i a l S e c u r i t y and t h e
Department o f Employment - a f t e r c o n s u l t i n g l o c a l a u t h o r i t y and v o l u n t a r y
-associations,
s h o u l d j o i n t l y s p o n s o r a s p e c i a l i n q u i r y i n London and
the p r o v i n c e s by a s o c i a l u n i t t o measure t h e s i z e o f t h e p r o b l e m o f h o m e l e s s
b l a c k y o u t h s and t o recommend ways o f d e a l i n g w i t h i t " ( p a r a g r a p h 2 £ 3 )
Comment - On 22 November 1972 t h e Home S e c r e t a r y a s k e d t h e Community R e l a t i o n s
Commission t o e n q u i r e i n t o t h e i n c i d e n c e ,
c a u s e s and c o n s e q u e n c e s o f b o t h a d o l e s ­
c e n t unemployment and a d o l e s c e n t h o m e l e s s n e s s among e t h n i c m i n o r i t i e s i n
c o u n t r y and t o r e p o r t on t h e p o l i c y i m p l i c a t i o n s o f t h e i r
this
findings.
This r e q u e s t was made under- S e c t i o n 25X3) ( h ) o f t h e Race R e l a t i o n s Act 1?68
;
tfhich p r o v i d e s f o r t h e Commission t o a d v i s e t h e S e c r e t a r y o f S t a t e on any m a t t e r
r e f e r r e d b y him t o t h e Commission.
(8)
" S e c t i o n 6 o f t h e Race R e l a t i o n s A c t 1965
s h o u l d e i t h e r be r e p e a l e d
or o c c a s i o n a l l y brought t o b e a r a g a i n s t p u b l i c a t i o n s and s p e e c h e s
s e e k i n g t o s t i r up r a c i a l h a t r e d " ( p a r a g r a p h
manifestly
2$9),
Comment - The Government a r e aware t h a t t h e p r o v i s i o n s of s e c t i o n 6 o f t h e Race
R e l a t i o n s A c t 1965
have b e e n c r i t i c i s e d p a r t l y on t h e g r o u n d s t h a t
p r o v i s i o n s are n o t appropriate t o the r e s t of the Act.
I t can, however,
be a r g u e d t h a t t h e p r o v i s i o n s a r e i n t h e m s e l v e s u n o b j e c t i o n a b l e ?
way i n h i b i t p r i v a t e d i s c u s s i o n , n o r do t h e y i n h i b i t r e a s o n a b l e
discussion;
these
t h e y i n no
public
what t h e y do i s t o f o r b i d p u b l i c a b u s e m o t i v a t e d by a c t u a l
t o s t i r up h a t r e d and l i k e l y t o s t i r up h a t r e d a g a i n s t any s e c t i o n o f
p u b l i c d i s t i n g u i s h e d by c o l o u r , r a c e or e t h n i c o r n a t i o n a l
­
intent
the
origins.
P r o s e c u t i o n s u n d e r t h e s e c t i o n j n a y be insjy.toted.J nEQgland and Wales o n l y by o r
;
xd.th t h e c o n s e n t o f t h e A t t o r n e y G e n e r a l .
There have b e e n p r o s e c u t i o n s i n
only
7 c a s e s , i n v o l v i n g a t o t a l o f f i f t e e n p e o p l e , s i n c e , t h e A c t came i n t o f o r c e .
The s m a l l number o f p r o s e c u t i o n s may i n d i c a t e t h a t t h e s e c t i o n h a s a d e t e r r e n t
effects
t h e A t t o r n e y G e n e r a l would n o t h e s i t a t e t o p r o s e c u t e o r g i v e h i s
c o n s e n t t o a p r o s e c u t i o n i f h e b e l i e v e d t h a t i t would b e i n t h e p u b l i c
interest
t o do s o .
On b a l a n c e , t h e Government doubt w h e t h e r a n y t h i n g w o u l d be g a i n e d b y r e p e a l i n g
t h e s e c t i o n a t t h e p r e s e n t t i m e , and w h a t e v e r d e t e r r e n t e f f e c t i t h a s would be
lost.
(Q)
"Community and y o u t h l e a d e r s s h o u l d do more t o c o u n t e r d i s t o r t i o n and
exaggeration"
Comment -
(paragraph 2 6 1 ) .
1
The Government s h a r e t h e C o m m i t t e e s v i e w s on t h e i m p o r t a n c e o f
a c o n s t r u c t i v e e x a m i n a t i o n o f t h e s o c i a l i s s u e s c r e a t e d by immigration,"
which can do much t o c o u n t e r t h e m i s c o n c e p t i o n s which abound i n t h i s
field.
The Community R e l a t i o n s Commission w i l l t h e r e f o r e c o n t i n u e t o encourage.,
community r e l a t i o n s c o u n c i l s t o p r o v i d e o b j e c t i v e i n f o r m a t i o n t o a l l
of t h e p u b l i c on t h e f a c t s o f a m u l t i - r a c i a l s o c i e t y and t h e i r
sections
implications.
In a d d i t i o n , t h e Commission a d v o c a t e s and a s s i s t s w i t h i n s t r u c t i o n about
m i n o r i t y groups a s p a r t o f t h e t r a i n i n g o f v a r i o u s t y p e s o f s o c i a l w o r k e r s .
(10)
" P o l i c e and immigrant o r g a n i s a t i o n s s h o u l d s e e k t o e n c o u r a g e community
,.
' - Is',. -'v . -.
' ' i X - - '
'v
l i a i s o n " (paragraph 271).
:
Comment -
:
:
The p o l i c e and p a r t i c u l a r l y t h e p o l i c e community l i a i s o n
officers
s e e k i n f o r m a l c o n t a c t s , s i n c e t h e y r e c o g n i s e t h a t t h i s i s t h e b e s t way t o
i n c r e a s e mutual u n d e r s t a n d i n g .
The Government f u l l y a c c e p t t h e g r e a t v a l u e
of t h e work w h i c h t h e p o l i c e and immigrant o r g a n i s a t i o n s do i n t h i s f i e l d ,
w i l l c o n t i n u e t o do e v e r y t h i n g p o s s i b l e t o encourage
it.
and
(ll)
" C h i e f o f f i c e r s o f p o l i c e s h o u l d r e a l i s e t h e i m p o r t a n c e of
appointing
the r i g h t p e r s o n t o be a community l i a i s o n o f f i c e r a n d t h e n o f making s u r e
5
t h a t t h e p o s t is , n o t a l l o w e d t o become a dead e n d .
Women have a s p e c i a l
c o n t r i b u t i o n t o make i n s u c h a p p o i n t m e n t s " ( p a r a g r a p h 2 7 4 ) .
(12)
" A l l s e n i o r p o l i c e community l i a i s o n o f f i c e r s
senior officers,
s h o u l d have a c c e s s
i n c l u d i n g c h i e f o f f i c e r s o f p o l i c e , when t h e y want
to
it"
0 (paragraph 2 7 5 ) .
(13)
"Chief O f f i c e r s o f p o l i c e s h o u l d c o n s i d e r t o what e x t e n t t h e y s h o u l d
a p p o i n t a s s i s t a n t community l i a i s o n o f f i c e r s
o f j u n i o r r a n k , i n c l u d i n g women,
p e r h a p s p a r t - t i m e , a t s u b d i v i s i o n s and s t a t i o n s " ( p a r a g r a p h 276)*
Comment - The Government a g r e e w i t h t h e s e r e c o m m e n d a t i o n s , which
g e n e r a l p o l i c e a t t i t u d e s and p r a c t i c e ,
of c h i e f o f f i c e r s
of p o l i c e ,
reflect
and w i l l b r i n g them t o t h e
attention
s o t h a t e x i s t i n g l i a i s o n arrangements can be
r e v i e w e d i n t h e l i g h t o f t h e S e l e c t Committee's
comments.
The p o l i c e a l r e a d y pay a good d e a l o f a t t e n t i o n t o t h e r o l e o f
conununity l i a i s o n o f f i c e r .
As t h e S e l e c t Committee h a v e r e c o g n i s e d ,
example i n t h e i r recommendations
on p o l i c e t r a i n i n g ,
good r e l a t i o n s
t h e p o l i c e . a n d t h e community depend n o t o n l y on t h e s p e c i a l i s t
liaison officers
the
for
between
community
b u t a l s o on t h e day t o day c o n t a c t s b e t w e e n the
generality
o f p o l i c e o f f i c e r s end member? o f t h e p u b l i c * . The home b e a t p o l i c e
officer
( t h e "neighbourhood p o l i c e m a n " ) , who i s w e l l p l a c e d t o b u i l d up c o n f i d e n c e
between t h e p o l i c e and t h e p e o p l e who l i v e i n h i s a r e a , may a l s o have a
special part to play.
:
I t i s e s s e n t i a l t h a t t h e community l i a i s o n o f f i c e r s
s h o u l d be o f
the
p e r s o n a l i t y and s t a n d i n g t o e n s u r e t h a t t h e c o n t a c t s a r e f r u i t f u l . ' I t
is
t h e g e n e r a l p r a c t i c e f o r community l i a i s o n o f f i c e r s t o have a c c e s s t o
senior officers,
i n c l u d i n g c h i e f o f f i c e r s o f p o l i c e , and t h e
t h a t women p o l i c e o f f i c e r s
contribution
can make i n t h i s f i e l d i s r e c o g n i s e d .
Appointraen
o f a s s i s t a n t and p a r t t i m e community l i a i s o n o f f i c e r s have b e e n made where
c i r c u m s t a n c e s w a r r a n t them.
'
(14)
9
"Regular m e e t i n g s o f community l i a i s o n o f f i c e r s
r e g i o n a l l y and n a t i o n a l l y " ( p a r a g r a p h
Comment -
s h o u l d be h e l d ,
277)*
The Government a g r e e t h a t f u r t h e r o p p o r t u n i t i e s f o r community
liaison officers
t o e x c h a n g e v i e w s and e x p e r i e n c e s would be
fruitful.
The Home O f f i c e are. i n t o u c h w i t h t h e A s s o c i a t i o n o f C h i e f P o l i c e
w i t h a view t o implementing t h i s
recommendation.
Officers
The Community R e l a t i o n s Commission s h o u l d r e v i e w t h e
(15)
o f community r e l a t i o n s c o u n c i l s i n r e l a t i o n t o o p e r a t i o n a l
(paragraph 28$)
Comment -
establishment
a r e a s IS
a
Community r e l a t i o n s c o u n c i l s i n t h e l a r g e r c i t i e s h a v e , f o r
moat p a r t , a l r e a d y a p p o i n t e d teams o f community r e l a t i o n s w o r k e r s .
p l a c e s community r e l a t i o n s c o u n c i l s have a p p o i n t e d s p e c i a l i s t
relations officers,
the
In other
community
f o r example f o r employment, h o u s i n g or e d u c a t i o n .
The
Community R e l a t i o n s Commission, i s c o n t i n u i n g t o keep under r e v i e w ways o f
m a i n t a i n i n g and i m p r o v i n g c o n t a c t - w i t h - l o c a l commuiiitie-sT^and i s
particularly
aware o f t h e n e e d f o r c l o s e r c o n t a c t w i t h c o m m u n i t i e s w i t h i n c o n u r b a t i o n s .
The Commission, however, has a l w a y s b e e n c o n s c i o u s of t h e n e e d t o
involve
l o c a l a u t h o r i t i e s i n i t s work and h e n c e community r e l a t i o n s c o u n c i l s have
been e s t a b l i s h e d on a b a s i s o f l o c a l a u t h o r i t y a r e a and t h i s w i l l remain t h e
general p a t t e r n .
(16)
"the Home O f f i c e and t h e Department o f E d u c a t i o n and S c i e n c e
hold d i s c u s s i o n s between t h e m s e l v e s ,
and w i t h a p p r o p r i a t e b o d i e s ,
should
including
t h e p o l i c e , w i t h a v i e w t o e n c o u r a g i n g and e x p a n d i n g p o l i c e work i n
schools
and among t e a c h e r s i n t r a i n i n g " ( p a r a g r a p h 2 8 6 ) .
Comment --
The Government a c c e p t t h i s recommendation and w i l l c o n t i n u e
stimulate local i n i t i a t i v e i n t h i s
field.
to
(17)
"The Home O f f i c e
s h o u l d implement t h e v i e w s and recommendations o f
t h e Working P a r t y on P o l i c e T r a i n i n g i n Race R e l a t i o n s i n l o c a l
training'
and s e e t h a t t h e y a r e p u t i n t o e f f e c t " ( p a r a g r a p h 2 9 3 ) .
Comment -
The i m p l e m e n t a t i o n i n l o c a l t r a i n i n g o f t h e recommendations o f
t h e R e p o r t o f t h e Working P a r t y Si P o l i c e T r a i n i n g i n Race R e l a t i o n s i s
matter for each c h i e f o f f i c e r of p o l i c e .
a
C o p i e s o f the r e p o r t have b e e n
s e n t t o them b y t h e Home O f f i c e w i t h a l e t t e r e n d o r s i n g t h e r e c o m m e n d a t i o n s .
A Working P a r t y on P o l i c e P r o b a t i o n e r T r a i n i n g t o o k t h e s e recommendations
i n t o account i n framing i t s p r o p o s a l s f o r t r a i n i n g p r o b a t i o n e r s both i n
Home O f f i c e t r a i n i n g c e n t r e s a n d - i n - f o r c e s .
The-Home-Office a r e t a k i n g
s t e p s t o s e e t h a t t h e s e p r o p o s a l s , w h i c h have b e e n a g r e e d b y the
Training Council,
are implemented according t o the n eeds of the
Police
individual
force.
(18)
"Wot o n l y s h o u l d p o l i c e o f f i c e r s be e n c o u r a g e d t o a p p l y f o r awards
for v i s i t s t o immigrants' c o u n t r i e s of o r i g i n but s t a t u t o r y b o d i e s
p r o v i d e f o r t h i s where t h e f u n d s a v a i l a b l e from v o l u n t a r y b o d i e s
insufficient"
(19)
should
are
( p a r a g r a p h 294) *
"There s h o u l d b e e x c h a n g e s f o r l o n g e r p e r i o d s o f p o l i c e
officers
o f l o w e r ranks w i t h t h o s e o f a p p r o p r i a t e c o u n t r i e s " (paragraph 2 9 4 ) .
Comment -
V i s i t s and e x c h a n g e s b e t w e e n p o l i c e o f f i c e r s of
c o u n t r i e s have c e r t a i n l y p r o v e d t o be v a l u a b l e ,
different
and p o l i c e o f f i c e r s
will
c o n t i n u e t o be e n c o u r a g e d t o a p p l y f o r awards f o r v i s i t s t o i m m i g r a n t s '
c o u n t r i e s of o r i g i n .
p a r t i c i p a t e i n such
Inevitably only a minority of officers
can
scheme^but i f n e c e s s a r y a s s i s t a n c e from p u b l i c
funds w i l l c e r t a i n l y be c o n s i d e r e d .
(20)
SI
A booklet should be issued to all police officers about the
backgrounds of immigrant communities, the reasons why they came to this
country, their cultures, z*e!igions and attitudes and an outline of the
immigration laws" (paragraph 295)'
Comment - The Government agree that information on these matters should continue to be given to all police officers as part of their training, but doubt whether it could usefully be summarised in a centrally produced booklet for practical use by all police officers.
Some forces have,already produced booklets, which have proved valuable, for local use. The recommendation of the Working Party on Police Training in Race Relations that more written material should be made available to police students and that every force should have a selection of suitable books easily available for study and reference was commended to chief officers of police. (21)
"There should be. a greatly increased use of visual aids"
(paragraph 295)
Comment - Visual aids of many kinds are already widely used in police training, and this recommendation will bs brought to the attention of chief officers of police. (22)
" T r a i n i n g i n r a c e r e l a t i o n s s h o u l d be k e p t up t o d a t e f o r
policemen a t a l l s t a g e s i n t h e i r c a r e e r s , n o t simply f o r the
all
current
i n t a k e o f r e c r u i t s " (pai^agraph 296) .
Comment -
The Working P a r t y o n p o l i c e T r a i n i n g i n Race R e l a t i o n s made
some d e t a i l e d recommendations on t h e t r a i n i n g o f o f f i c e r s
their careers,
throughout
and t h e s e recommendations have b e e n brought; t o t h e
of c h i e f o f f i c e r s , o f p o l i c e .
A b t e n t i o n ra.ll be drawn t o them
again i n the l i g h t o f t h i s recommendation.
They w i l l a l s o b e
taken
i n t o a c c o u n t i n a g e n e r a l r e v i e w o f s e r g e a n t s ' t r a i n i n g which i s
t o be u n d e r t a k e n a n d , t o t h e e x t e n t t h a t t h i s i s n o t done a l r e a d y ,
p l a n n i n g f u t u r e c o u r s e s a t t h e P o l i c e C o l l e g e f o r more s e n i o r
(23)
notice
shortly
in
officers.
"Experiments w i t h more f l e x i b l e t y p e s o f t r a i n i n g s h o u l d b e c o n t i n u e d
and e x t e n d e d (paragraph 296)
.
Comment - W i t h i n t h e l i m i t s o f manpower and r e s o u r c e s a v a i l a b l e t o e a c h f o r c e ,
experiments i n t h i s f i e l d are d e s i r a b l e ,
and t h e Home O f f i c e w i l l draw t h i s
recommendation t o t h e a t t e n t i o n o f c h i e f o f f i c e r s o f p o l i c e .
(2k)
"The Home Office should study again the recruitment of coloured police
officers to see what encouragement could be given" (paragraph
306).
Comment - The Government readily accept the recommendation that the Home Office should study again the recruitment of coloured police officers.
The study will take into account the evidence given to the Committee and the effects of applying other relevant recommendations as they, become, apparent. At. the end of August 1973
there were 65 coloured police officers serving
forces in England and Wales, an increase of
when the figures given in the report were prepared.
The Government welcome
this small, though marked, increase and Xirould welcome larger increases in
future years.
The Department of Employment arranges pre-training courses in English and arithmetic for people intending to undergo subsequent training for the public service, including the police.
These courses are of particular benefit to immigrants. (25)
"Any recruiting campaign for special constables should include an appeal
to coloured people" (paragraph
307)*
Comment - The recruitment of special constables is the responsibility of
chief officers of police and has always been a local matter.
circular which was issued on 28 November 1972
A Home Office
quoted paragraph 307 and
recommendation 25 of the Report and asked police authorities and. chief
constables to bear the recommendation in mind.
Some posters and recruiting
leaflets relating to the Special Constabulary are supplied by the Home Office
and new ones were produced during 1972.
When fresh designs are.required, the
Home Office will have regard to this recommendation.
1 ! E l D £SWT! I V
(26)
"Police forces outside London should pay attention to the benefits
of recruiting coloured traffic wardens and the Home Office should take them
into account in their study" (paragraph 308).
Comment - Recruitment of traffic wardens outside the Metropolitan Police
District is a matter for police authorities,-and the.Committee's view will
be conveyed to them.
The considerations and problems involved in the
recruitment of traffic wardens differ in many respects from those arising on
police recruitment and it is doubtful whether recruitment of traffic wardens
c m usefully be included in the study suggested by recommendation 2iu
If
s
however, any matters relevant to traffic wardens arise in the course of the study, they will be passed on to those concerned with recruitment,, (27) "All police forces in which it is appropriate should consider the
award of special allowances to those becoming proficient in Asian Languages"
(paragraph 3 1 2 ) .
Comment
- The Police Council for the United Kingdom, whose responsibility this is in the first instance, have been asked for their views. (28)
"All police forces whose members are likely to have contact with Asians
should make provision for all their officers to learn a few simple words of
Hindi/Urdu" (paragraph 3 1 2 ) .
Comment
-
The Government will bring this recommendation to the attention of chief officers of police, and will be ready to give chief officers any assistance they may require.
immigrant languages. Some police officers do in fact already study (29)
n
A l l p o l i c e f o r c e s s h o u l d g e e k t h e c o - o p e r a t i o n o f community r e l a t i o n s
councils and/or immigrant organisations in drawing up l i s t s
interpreters"
Comment -
of
official
(paragraph 313)o
The Government have no evidence that the police experience
difficulty i n obtaining i n t e r p r e t e r s , b u t the recommendation w i l l be b r o u g h t
to the a t t e n t i o n o f chief officers of p o l i c e .
(30)
" A l l p o l i c e f o r c e s s h o u l d i m m e d i a t e l y make w i d e l y
available
c l e a r , c o n c i s e pamphlets i n E n g l i s h and A s i a n l a n g u a g e s a b o u t t h e
polios
r o l e and f u n c t i o n s " (paragraph 314) .
Comment -
The S e l e c t Committee r e f e r i n paragraph 314 t o t h e
pamphlet i s s u e d by t h e Home O f f i c e i n 1971o
draft
Some f o r c e s have i s s u e d
such p a m p h l e t s , and the Government w i l l i n v i t e a l l c h i e f o f f i c e r s
of
p o l i c e t o c o n s i d e r doing s o .
(33.)
" I n f o r m a t i o n about malting c o m p l a i n t s a g a i n s t t h e p o l i c e and t h e r i g h t s
of c i t i z e n s on a r r e s t or a t a p o l i c e s t a t i o n s h o u l d be a v a i l a b l e i n
appropriate languages" (paragraph
Comment -
all
315)o
The Government w i l l make l e a f l e t s on t h e s e s u b j e c t s a v a i l a b l e
chief o f f i c e r s
of p o l i c e i n a p p r o p r i a t e l a n g u a g e s .
to
*Ul\lrIUhNleAlL ­
(32)
"The police should do more to make known the work they do to improve
community relations" (paragraph 318) .
Comment -
The Government agree that it is desirable that the effort the police devote to community relations should be widely known and will draw this recommendation to the attention of chief officers of police. (33)
"Lists of names of persons who could be contacted on arrest should
be drawn up in consultation with community relations councils and made
available on request at police stations., But it should be made clear that
provision of the list does not automatically confer on an arrested person
the right to telephone anyone on it" (paragraph 322).
This recommendation will be drawn to the attention of chief - "' "
I
officers of police. The Government agree with the Select Committee^ Comment -
:
! V
comment (paragraph 225) that an individual should not, by virtue.only of being on such a list, be entitled to be present when a person is charged or questioned at a police station. (3k)
"The Home Office should issue fresh guidance on the best way of giving
information about the rights of individuals in their dealings with the police"
(paragraph 32h)- -
Comment -
The Judges' Rules and Administrative Directions to the Police
(published by H.M. Stationery Office, 196h, price 10p) not only require that
persons in custody should be informed orally of the rights and facilities
available to them but also that notices describing them should be displayed
at convenient and conspicuous places at police stations and that the attention
of persons in custody should be drawn to these notices. Attention is drawn
to these requirements in the draft pamphlet sent to chief officers of police
by the Home Office and referred to in the comment on recommendation 30 above.
Subject to what is said in the comment on recommendation 3 1 , the Government
doubt whether any fresh guidance to police forces is necessary.
CONFIDENTIAL­
(35)
"The Home S e c r e t a r y 3hould t a k e u r g e n t s t e p s t o i n t r o d u c e a l a y
element i n t o i n q u i r i e s i n t o c o m p l a i n t s a g a i n s t t h e p o l i c e , p o s s i b l y b y
s e t t i n g up i n d e p e n d e n t t r i b u n a l s t o c o n s i d e r a p p e a l s b y c o m p l a i n a n t s o r
police officers d i s s a t i s f i e d with police inquiries into
complaints
(paragraph 3 3 3 ) .
d
'
Comment -
Consultations are i n progress w i t h the p o l i c e
II
representative
b o d i e s a b o u t t h e p o s s i b l e i n t r o d u c t i o n o f an i n d e p e n d e n t e l e m e n t i n t o the
arrangements f o r d e a l i n g wi.th c o m p l a i n t s a g a i n s t t h e p o l i c e , ,
(36)
" A l l p o l i c e f o r c e s s h o u l d a d o p t t h e p r a c t i c e of s e n d i n g , where
a p p r o p r i a t e , a s e n i o r o f f i c e r t o d i s c u s s w i t h a c o m p l a i n a n t t h e r e s u l t of
his complaint (paragraph 3 3 4 ) e
Comment -
I t has a l r e a d y b e e n s u g g e s t e d t o c h i e f o f f i c e r s
of p o l i c e i n a
Home O f f i c e c i r c u l a r t h a t i n a p p r o p r i a t e c a s e s a s e n i o r p o l i c e o f f i c e r might­
s e e t h e c o m p l a i n a n t and e x p l a i n why t h e o f f i c e r c o m p l a i n e d o f t o o k a c e r t a i n
course of a c t i o n , what was h i s d u t y , what were h i s p o l i c e powers and what w e r e
the c i r c u m s t a n c e s i n which he a c t e d .